U.S. Supreme Court Universal Camera Corp. v. Labor Board, 340 U.S. 474 (1951 Universal Camera Corp.

v. !ational Labor "elations Board !o. 40 #r$ued !ovember %&7, 1950 'e(ided )ebruar* +%, 1951 340 U.S. 474 C,"-./"#". -/ -0, U!.-,' S-#-,S C/U"- /) #11,#LS )/" -0, S,C/!' C."CU.S*llabus -2e !ational Labor "elations Board ordered petitioner to reinstate 3it2 ba(4 pa* an emplo*ee 5ound to 2ave been dis(2ar$ed be(ause 2e $ave (ertain testimon* in anot2er pro(eedin$ under t2e !ational Labor "elations #(t. -2e eviden(e as to t2e reason 5or 2is dis(2ar$e 3as (on5li(tin$, and t2e Board overruled its e6aminer7s 5indin$s o5 5a(t and 2is re(ommendation t2at t2e pro(eedin$s be dismissed. .n de(reein$ en5or(ement, t2e Court o5 #ppeals 2eld t2at t2e Board7s 5indin$s o5 5a(t 3ere 8supported b* substantial eviden(e on t2e re(ord (onsidered as a 32ole8 3it2in t2e meanin$ o5 9 10(e o5 t2e !ational Labor "elations #(t, as amended in 1947. -2is 2oldin$ 3as based partl* on t2e vie3 (1 t2at t2e 1947 amendments 2ad not broadened t2e s(ope o5 :udi(ial revie3, and (+ t2at t2e Board7s re:e(tion o5 its e6aminer7s 5indin$s o5 5a(t 3as 3it2out relevan(e in determinin$ 32et2er t2e Board7s 5indin$s 3ere supported b* substantial eviden(e. 0eld; 1. .n t2e li$2t o5 t2e le$islative 2istor*, t2e standard o5 proo5 re<uired under 9 10(e o5 t2e !ational Labor "elations #(t, as amended b* t2e Labor =ana$ement "elations #(t, 1947, to support a de(ision o5 t2e Labor Board on :udi(ial revie3 is t2e same as t2at to be e6a(ted b* (ourts revie3in$ ever* administrative a(tion sub:e(t to t2e #dministrative 1ro(edure #(t. 1p. 340 U. S. 477&4>7. +. .n amendin$ 9 10(e o5 t2e !ational Labor "elations #(t so as to re<uire t2at, on :udi(ial revie3, t2e Board7s 5indin$s o5 5a(t must be supported b* substantial eviden(e 8on t2e re(ord (onsidered as a 32ole,8 Con$ress made it (lear t2at a revie3in$ (ourt is not barred 5rom settin$ aside a Board de(ision 32en it (annot (ons(ientiousl* 5ind t2at t2e eviden(e supportin$ t2at de(ision is substantial, 32en vie3ed in t2e li$2t t2at t2e re(ord in its entiret* 5urnis2es, in(ludin$ t2e bod* o5 eviden(e opposed to t2e Board7s vie3. 1p. 340 U. S. 4>7&4>>. 3. ?2en read in t2e li$2t o5 t2eir le$islative 2istor*, t2e #dministrative 1ro(edure #(t and t2e Labor =ana$ement "elations #(t, 1a$e 340 U. S. 475

1947, re<uire t2e (ourts to assume more responsibilit* 5or t2e reasonableness and 5airness o5 Labor Board de(isions t2an some (ourts 2ave s2o3n in t2e past. 1p. 340 U. S. 4>>&490. 4. ?2et2er, on t2e re(ord as a 32ole, t2ere is substantial eviden(e to support a$en(* 5indin$s is a <uestion 32i(2 Con$ress 2as pla(ed in t2e 4eepin$ o5 t2e (ourts o5 appeals. -2is Court 3ill intervene onl* in 32at ou$2t to be t2e rare instan(e 32en t2e standard appears to 2ave been misappre2ended or $rossl* misapplied. 1. 340 U. S. 491. 5. -2e Court o5 #ppeals erred in 2oldin$ t2at it 3as barred 5rom ta4in$ into a((ount t2e report o5 t2e e6aminer on <uestions o5 5a(t inso5ar as t2at report 3as re:e(ted b* t2e Board. 1p. 340 U. S. 491&497. (a # trial e6aminer7s 5indin$s are not as unassailable as a master7s, and ma* be reversed b* t2e Board 32en 32en not (learl* erroneous. 1. 340 U. S. 49+. (b # revie3in$ (ourt need not $ive a trial e6aminer7s 5indin$s more 3ei$2t t2an, in reason and in t2e li$2t o5 :udi(ial e6perien(e, t2e* deserve, but t2e* s2ould be a((orded t2e relevan(e t2at t2e* reasonabl* (ommand in ans3erin$ t2e (ompre2ensive <uestion 32et2er t2e eviden(e supportin$ t2e Board7s order is substantial. 1p. 340 U. S. 49%&497. %. -2e (ause is remanded to t2e Court o5 #ppeals, 32i(2 is le5t 5ree to $rant or den* en5or(ement as it t2in4s t2e prin(iples e6pressed in t2e opinion, o5 t2is Court di(tate. 1.340 U. S. 497. 179 ). +d 749, va(ated and remanded. -2e Court o5 #ppeals de(reed en5or(ement o5 an order o5 t2e !ational Labor "elations Board re<uirin$ petitioner to reinstate an emplo*ee 3it2 ba(4 pa* and to (ease and desist 5rom dis(riminatin$ a$ainst an* emplo*ee 32o 5iles (2ar$es or $ives testimon* under t2e !ational Labor "elations #(t. 179 ).+d 749. -2is Court $ranted (ertiorari. 339 U.S. 9%+. @ud$ment va(ated and (ause remanded, p. 340 U. S. 497. 1a$e 340 U. S. 47% =". @US-.C, )"#!A)U"-," delivered t2e opinion o5 t2e Court. -2e essential issue raised b* t2is (ase and its (ompanion, Labor Board v. 1ittsbur$2 Steams2ip Co., post, 340 U. S. 49>, is t2e e55e(t o5 t2e #dministrative 1ro(edure #(t and t2e le$islation (ollo<uiall* 4no3n as t2e -a5t&0artle* #(t on t2e dut* o5 Courts o5 #ppeals 32en (alled upon to revie3 orders o5 t2e !ational Labor "elations Board. -2e Court o5 #ppeals 5or t2e Se(ond Cir(uit $ranted en5or(ement o5 an order dire(tin$, in t2e main, t2at petitioner reinstate 3it2 ba(4 pa* an emplo*ee 5ound to 2ave been dis(2ar$ed be(ause 2e $ave testimon* under t2e ?a$ner #(t, and (ease and desist 5rom dis(riminatin$ a$ainst an* emplo*ee 32o 5iles (2ar$es or $ives testimon* under t2at #(t. -2e (ourt belo3, @ud$e S3an dissentin$, de(reed

5ull en5or(ement o5 t2e order. 179 ).+d 749. Be(ause t2e vie3s o5 t2at (ourt re$ardin$ t2e e55e(t o5 t2e ne3 le$islation on t2e relation bet3een t2e Board and t2e (ourts o5 appeals in t2e en5or(ement o5 t2e Board7s orders (on5li(ted 3it2 t2ose o5 t2e Court o5 #ppeals 5or t2e Si6t2 Cir(uit, B)ootnote 1C 3e brou$2t bot2 (ases 2ere. 339 U.S. 951. -2e (las2 o5 opinion obviousl* re<uired settlement b* t2is Court. 1a$e 340 U. S. 477 . . ?ant o5 (ertaint* in :udi(ial revie3 o5 Labor Board de(isions partl* re5le(ts t2e intra(tabilit* o5 an* 5ormula to 5urnis2 de5initeness o5 (ontent 5or all t2e impalpable 5a(tors involved in :udi(ial revie3. But, in part, doubts as to t2e nature o5 t2e revie3in$ po3er and un(ertainties in its appli(ation derive 5rom 2istor*, and, to t2at e6tent, an elu(idation o5 t2is 2istor* ma* (lear t2em a3a*. -2e ?a$ner #(t provided; 8-2e 5indin$s o5 t2e Board as to t2e 5a(ts, i5 supported b* eviden(e, s2all be (on(lusive.8 #(t o5 @ul* 5, 1935, 9 10(e , 49 Stat. 449, 454, +9 U.S.C. 9 1%0(e . -2is Court read 8eviden(e8 to mean 8substantial eviden(e,8?as2in$ton, D. E =. Coa(2 Co. v. Labor Board, 301 U. S. 14+, and 3e said t2at 8BsCubstantial eviden(e is more t2an a mere s(intilla. .t means su(2 relevant eviden(e as a reasonable mind mi$2t a((ept as ade<uate to support a (on(lusion.8 Consolidated ,dison Co. v. Labor Board, 305 U. S. 197, 305 U. S. ++9. #((ordin$l*, it 8must do more t2an (reate a suspi(ion o5 t2e e6isten(e o5 t2e 5a(t to be establis2ed. . . . B.Ct must be enou$2 to :usti5*, i5 t2e trial 3ere to a :ur*, a re5usal to dire(t a verdi(t 32en t2e (on(lusion sou$2t to be dra3n 5rom it is one o5 5a(t 5or t2e :ur*.8 Labor Board v. Columbian ,namelin$ E Stampin$ Co., 30% U. S. +9+, 30% U. S. 300. -2e ver* smoot2ness o5 t2e 8substantial eviden(e8 5ormula as t2e standard 5or revie3in$ t2e evidentiar* validit* o5 t2e Board7s 5indin$s establis2ed its (urren(*. But t2e inevitabl* variant appli(ations o5 t2e standard to (on5li(tin$ eviden(e soon brou$2t (ontrariet* o5 vie3s, and, in due (ourse, bred (riti(ism. ,ven t2ou$2 t2e 32ole re(ord ma* 2ave been (anvassed in order to determine 32et2er t2e evidentiar* 5oundation o5 a determination b* t2e Board 3as 8substantial,8 t2e p2rasin$ o5 t2is Court7s pro(ess o5 revie3 readil* lent itsel5 to t2e notion 1a$e 340 U. S. 47> t2at it 3as enou$2 t2at t2e eviden(e supportin$ t2e Board7s result 3as 8substantial8 32en (onsidered b* itsel5. .t is 5air to sa* t2at, b* imper(eptible steps, re$ard 5or t2e 5a(t5indin$ 5un(tion o5 t2e Board led to t2e assumption t2at t2e re<uirements o5 t2e ?a$ner #(t 3ere met 32en t2e revie3in$ (ourt (ould 5ind in t2e re(ord eviden(e 32i(2, 32en vie3ed in isolation, substantiated t2e Board7s 5indin$s. Compare Labor

Board v. ?aterman Steams2ip Corp., 309 U. S. +0%F Labor Board v. Brad5ord '*ein$ #ss7n, 310 U. S. 31>F and see Labor Board v. !evada Consolidated Copper Corp., 31% U. S. 105. -2is is not to sa* t2at ever* member o5 t2is Court 3as (ons(iousl* $uided b* t2is vie3, or t2at t2e Court ever e6pli(itl* avo3ed t2is pra(ti(e as do(trine. ?2at matters is t2at t2e belie5 :usti5iabl* arose t2at t2e Court 2ad so (onstrued t2e obli$ation to revie3. B)ootnote +C Criti(ism o5 so (ontra(ted a revie3in$ po3er rein5or(ed dissatis5a(tion 5elt in various <uarters 3it2 t2e Board7s administration o5 t2e ?a$ner #(t in t2e *ears pre(edin$ t2e 3ar. -2e s(2eme o5 t2e #(t 3as atta(4ed as an in2erentl* un5air 5usion o5 t2e 5un(tions o5 prose(utor and :ud$e. B)ootnote 3C #((usations o5 partisan bias 3ere not 3antin$. B)ootnote 4C -2e 8irresponsible admission and 3ei$2in$ o5 2earsa*, opinion, and emotional spe(ulation in pla(e o5 5a(tual eviden(e8 3as said to be a 8serious mena(e.8 B)ootnote 5C !o doubt 1a$e 340 U. S. 479 some, per2aps even mu(2, o5 t2e (riti(ism 3as baseless ,and some surel* 3as re(4less. B)ootnote %C ?2at is 2ere relevant, 2o3ever, is t2e (limate o5 opinion t2ereb* $enerated, and its e55e(t on Con$ress. 1rotests a$ainst 8s2o(4in$ in:usti(es8 B)ootnote 7C and intimations o5 :udi(ial 8abdi(ation8 B)ootnote >C 3it2 32i(2 some (ourts $ranted en5or(ement o5 t2e Board7s order stimulated pressures 5or le$islative relie5 5rom alle$ed administrative e6(esses. -2e stren$t2 o5 t2ese pressures 3as re5le(ted in t2e passa$e in 1940 o5 t2e ?alter& Lo$an Bill. .t 3as vetoed b* 1resident "oosevelt, partl* be(ause it imposed undul* ri$id limitations on t2e administrative pro(ess and partl* be(ause o5 t2e investi$ation into t2e a(tual operation o5 t2e administrative pro(ess t2en bein$ (ondu(ted b* an e6perien(ed (ommittee appointed b* t2e #ttorne* General. B)ootnote 9C .t is 3ort2 notin$ t2at, despite its aim to ti$2ten (ontrol over administrative determinations o5 5a(t, t2e ?alter&Lo$an Bill (ontented itsel5 3it2 t2e (onventional 5ormula t2at an a$en(*7s de(ision (ould be set aside i5 8t2e 5indin$s o5 5a(t are not supported b* substantial eviden(e.8 B)ootnote 10C 1a$e 340 U. S. 4>0 -2e 5inal report o5 t2e #ttorne* General7s Committee 3as submitted in @anuar*, 1941. -2e ma:orit* (on(luded t2at 8BdCissatis5a(tion 3it2 t2e e6istin$ standards as to t2e s(ope o5 :udi(ial revie3 derives lar$el* 5rom dissatis5a(tion 3it2 t2e 5a(t5indin$ pro(edures no3 emplo*ed b* t2e administrative bodies. B)ootnote 11C8 'eparture 5rom t2e 8substantial eviden(e8 test, it t2ou$2t, 3ould eit2er (reate unne(essar* un(ertaint* or trans5er to (ourts t2e responsibilit* 5or as(ertainin$ and assa*in$ matters t2e si$ni5i(an(e o5 32i(2 lies outside :udi(ial (ompeten(e. #((ordin$l*, it re(ommended a$ainst Le$islation embod*in$ a $eneral s(2eme o5 :udi(ial revie3. B)ootnote 1+C 1a$e 340 U. S. 4>1

-2ree members o5 t2e Committee re$istered a dissent. -2eir vie3 3as t2at t2e 8present s*stem or la(4 o5 s*stem o5 :udi(ial revie38 led to in(onsisten(* and un(ertaint*. -2e* reported t2at, under a 8prevalent8 interpretation o5 t2e 8substantial eviden(e8 rule, 8i5 32at is (alled 7substantial eviden(e7 is 5ound an*32ere in t2e re(ord to support (on(lusions o5 5a(t, t2e (ourts are said to be obli$ed to sustain t2e de(ision 3it2out re5eren(e to 2o3 2eavil* t2e (ountervailin$ eviden(e ma* preponderate && unless, indeed, t2e sta$e o5 arbitrar* de(ision is rea(2ed. Under t2is interpretation, t2e (ourts need to read onl* one side o5 t2e (ase, and, i5 t2e* 5ind an* eviden(e t2ere, t2e administrative a(tion is to be sustained, and t2e re(ord to t2e (ontrar* is to be i$nored. B)ootnote 13C8 -2eir vie3 led t2em to re(ommend t2at Con$ress ena(t prin(iples o5 revie3 appli(able to all a$en(ies not e6(epted b* uni<ue (2ara(teristi(s. /ne o5 t2ese prin(iples 3as e6pressed b* t2e 5ormula t2at :udi(ial revie3 (ould e6tend to 85indin$s, in5eren(es, or (on(lusions o5 5a(t unsupported, upon t2e 32ole re(ord, b* substantial eviden(e.8 B)ootnote 14C So 5ar as t2e 1a$e 340 U. S. 4>+ 2istor* o5 t2is movement 5or enlar$ed revie3 reveals, t2e p2rase 8upon t2e 32ole re(ord8 ma4es its 5irst appearan(e in t2is re(ommendation o5 t2e minorit* o5 t2e #ttorne* General7s Committee. -2is eviden(e o5 t2e (lose relations2ip bet3een t2e p2rase and t2e (riti(ism out o5 32i(2 it arose is important, 5or t2e substan(e o5 t2is 5ormula 5or :udi(ial revie3 5ound its 3a* into t2e statute boo4s 32en Con$ress 3it2 un<uestionin$ && 3e mi$2t even sa* un(riti(al && unanimit* ena(ted t2e #dministrative 1ro(edure #(t. B)ootnote 15C 1a$e 340 U. S. 4>3 /n(e is tempted to sa* 8un(riti(al8 be(ause t2e le$islative 2istor* o5 t2at #(t 2ardl* spea4s 3it2 t2at (larit* o5 purpose 32i(2 Con$ress supposedl* 5urnis2es (ourts in order to enable t2em to en5or(e its true 3ill. /n t2e one 2and, t2e sponsors o5 t2e le$islation indi(ated t2at t2e* 3ere rea55irmin$ t2e prevailin$ 8substantial eviden(e8 test. B)ootnote 1%C But, 3it2 e<ual (larit*, t2e* e6pressed disapproval o5 t2e manner in 32i(2 t2e (ourts 3ere appl*in$ 1a$e 340 U. S. 4>4 t2eir o3n standard. -2e (ommittee reports o5 bot2 2ouses re5er to t2e pra(ti(e o5 a$en(ies to rel* upon 8suspi(ion, surmise, impli(ations, or plainl* in(redible eviden(e,8 and indi(ate t2at (ourts are to e6a(t 2i$2er standards 8in t2e e6er(ise o5 t2eir independent :ud$ment,8 and on (onsideration o5 8t2e 32ole re(ord.8 B)ootnote 17C Similar dissatis5a(tion 3it2 too restri(ted appli(ation o5 t2e 8substantial eviden(e8 test is re5le(ted in t2e le$islative 2istor* o5 t2e -a5t&0artle* #(t. B)ootnote 1>C -2e bill as reported to t2e 0ouse provided t2at t2e 85indin$s o5 t2e Board as to t2e 5a(ts s2all be (on(lusive unless it is made to appear

to t2e satis5a(tion o5 t2e (ourt eit2er (1 t2at t2e 5indin$s o5 5a(t are a$ainst t2e mani5est 3ei$2t o5 t2e 1a$e 340 U. S. 4>5 eviden(e, or (+ t2at t2e 5indin$s o5 5a(t are not supported b* substantial eviden(e. B)ootnote 19C8 -2e bill le5t t2e 0ouse 3it2 t2is provision. ,arl* (ommittee prints in t2e Senate provided 5or revie3 b* 83ei$2t o5 t2e eviden(e8 or 8(learl* erroneous8 standards. B)ootnote +0C But, as t2e Senate Committee "eport relates, 8it 3as 5inall* de(ided to (on5orm t2e statute to t2e (orrespondin$ se(tion o5 t2e #dministrative 1ro(edure #(t, 32ere t2e substantial eviden(e test prevails. .n order to (lari5* an* ambi$uit* in t2at statute, 2o3ever, t2e (ommittee inserted t2e 3ords 7<uestions o5 5a(t, i5 supported b* substantial eviden(e on t2e re(ord (onsidered as a 32ole. . . .7 B)ootnote +1C8 -2is p2raseolo$* 3as adopted b* t2e Senate. -2e 0ouse (on5erees a$reed. -2e* reported to t2e 0ouse; 8.t is believed t2at t2e provisions o5 t2e (on5eren(e a$reement 1a$e 340 U. S. 4>% relatin$ to t2e (ourts7 revie3in$ po3er 3ill be ade<uate to pre(lude su(2 de(isions as t2ose in !L"B v. !evada Consol. Copper Corp., 31% U. S. 105, and in t2e ?ilson, Columbia 1rodu(ts, Union 1a(i5i( Sta$es, 0earst, "epubli( #viation, and Le -ourneau, et(. (ases, supra, 3it2out undul* burdenin$ t2e (ourts. B)ootnote ++C8 -2e Senate version be(ame t2e la3. 1a$e 340 U. S. 4>7 .t is 5air to sa* t2at, in all t2is, Con$ress e6pressed a mood. #nd it e6pressed its mood not merel* b* orator*, but b* le$islation. #s le$islation, t2at mood must be respe(ted, even t2ou$2 it (an onl* serve as a standard 5or :ud$ment, and not as a bod* o5 ri$id rules assurin$ sameness o5 appli(ations. ,n5or(ement o5 su(2 broad standards implies subtlet* o5 mind and solidit* o5 :ud$ment. But it is not 5or us to <uestion t2at Con$ress ma* assume su(2 <ualities in t2e 5ederal :udi(iar*. )rom t2e le$islative stor* 3e 2ave summariHed, t3o (on(rete (on(lusions do emer$e. /ne is t2e identit* o5 aim o5 t2e #dministrative 1ro(edure #(t and t2e -a5t& 0artle* #(t re$ardin$ t2e proo5 3it2 32i(2 t2e Labor Board must support a de(ision. -2e ot2er is t2at, no3, Con$ress 2as le5t no room 5or doubt as to t2e 4ind o5 s(rutin* 32i(2 a (ourt o5 appeals must $ive t2e re(ord be5ore t2e Board to satis5* itsel5 t2at t2e Board7s order rests on ade<uate proo5. .t 3ould be mis(2ievous 3ord&pla*in$ to 5ind t2at t2e s(ope o5 revie3 under t2e -a5t& 0artle* #(t is an* di55erent 5rom t2at under t2e #dministrative 1ro(edure #(t. -2e Senate Committee 32i(2 reported t2e revie3 (lause o5 t2e -a5t&0artle* #(t e6pressl* indi(ated t2at t2e t3o standards 3ere to (on5orm in t2is re$ard, and t2e

3ordin$ o5 t2e t3o #(ts is, 5or purposes o5 :udi(ial administration, identi(al. #nd so 3e 2old t2at t2e standard o5 proo5 spe(i5i(all* re<uired o5 t2e Labor Board b* t2e -a5t&0artle* #(t is t2e same as t2at to be e6a(ted b* (ourts revie3in$ ever* administrative a(tion sub:e(t to t2e #dministrative 1ro(edure #(t. ?2et2er or not it 3as ever permissible 5or (ourts to determine t2e substantialit* o5 eviden(e supportin$ a Labor Board de(ision merel* on t2e basis o5 eviden(e 32i(2, in and o5 itsel5, :usti5ied it, 3it2out ta4in$ into a((ount (ontradi(tor* eviden(e or eviden(e 5rom 32i(2 (on5li(tin$ in5eren(es (ould be dra3n, t2e ne3 le$islation 1a$e 340 U. S. 4>> de5initivel* pre(ludes su(2 a t2eor* o5 revie3 and bars its pra(ti(e. -2e substantialit* o5 eviden(e must ta4e into a((ount 32atever in t2e re(ord 5airl* detra(ts 5rom its 3ei$2t. -2is is (learl* t2e si$ni5i(an(e o5 t2e re<uirement in bot2 statutes t2at (ourts (onsider t2e 32ole re(ord. Committee reports and t2e adoption in t2e #dministrative 1ro(edure #(t o5 t2e minorit* vie3s o5 t2e #ttorne* General7s Committee demonstrate t2at to en:oin su(2 a dut* on t2e revie3in$ (ourt 3as one o5 t2e important purposes o5 t2e movement 32i(2 eventuated in t2at ena(tment. -o be sure, t2e re<uirement 5or (anvassin$ 8t2e 32ole re(ord8 in order to as(ertain substantialit* does not 5urnis2 a (al(ulus o5 value b* 32i(2 a revie3in$ (ourt (an assess t2e eviden(e. !or 3as it intended to ne$ative t2e 5un(tion o5 t2e Labor Board as one o5 t2ose a$en(ies presumabl* e<uipped or in5ormed b* e6perien(e to deal 3it2 a spe(ialiHed 5ield o5 4no3led$e, 32ose 5indin$s 3it2in t2at 5ield (arr* t2e aut2orit* o5 an e6pertness 32i(2 (ourts do not possess, and t2ere5ore must respe(t. !or does it mean t2at, even as to matters not re<uirin$ e6pertise, a (ourt ma* displa(e t2e Board7s (2oi(e bet3een t3o 5airl* (on5li(tin$ vie3s even t2ou$2 t2e (ourt 3ould :usti5iabl* 2ave made a di55erent (2oi(e 2ad t2e matter been be5ore it de novo. Con$ress 2as merel* made it (lear t2at a revie3in$ (ourt is not barred 5rom settin$ aside a Board de(ision 32en it (annot (ons(ientiousl* 5ind t2at t2e eviden(e supportin$ t2at de(ision is substantial 32en vie3ed in t2e li$2t t2at t2e re(ord in its entiret* 5urnis2es, in(ludin$ t2e bod* o5 eviden(e opposed to t2e Board7s vie3. -2ere remains, t2en, t2e <uestion 32et2er ena(tment o5 t2ese t3o statutes 2as altered t2e s(ope o5 revie3 ot2er t2an to re<uire t2at substantialit* be determined in t2e li$2t o5 all t2at t2e re(ord relevantl* presents. # 5ormula 5or :udi(ial revie3 o5 administrative a(tion ma* a55ord $rounds 5or (ertitude, but (annot assure (ertaint* o5 appli(ation. 1a$e 340 U. S. 4>9 Some s(ope 5or :udi(ial dis(retion in appl*in$ t2e 5ormula (an be avoided onl* b* 5alsi5*in$ t2e a(tual pro(ess o5 :ud$in$, or b* usin$ t2e 5ormula as an instrument o5 5utile (asuistr*. .t (annot be too o5ten repeated t2at :ud$es are not automata. -2e ultimate relian(e 5or t2e 5air operation o5 an* standard is a :udi(iar* o5 2i$2 (ompeten(e and (2ara(ter, and t2e (onstant pla* o5 an in5ormed pro5essional (riti<ue upon its 3or4. Sin(e t2e pre(ise 3a* in 32i(2 (ourts inter5ere 3it2 a$en(* 5indin$s (annot be

imprisoned 3it2in an* 5orm o5 3ords, ne3 5ormulas attemptin$ to rep2rase t2e old are not li4el* to be more 2elp5ul t2an t2e old. -2ere are no talismani( 3ords t2at (an avoid t2e pro(ess o5 :ud$ment. -2e di55i(ult* is t2at 3e (annot es(ape, in relation to t2is problem, t2e use o5 unde5ined de5inin$ terms. ?2atever (2an$es 3ere made b* t2e #dministrative 1ro(edure and -a5t&0artle* #(ts are (learl* 3it2in t2is area 32ere pre(ise de5inition is impossible. "etention o5 t2e 5amiliar 8substantial eviden(e8 terminolo$* indi(ates t2at no drasti( reversal o5 attitude 3as intended. But a standard leavin$ an unavoidable mar$in 5or individual :ud$ment does not leave t2e :udi(ial :ud$ment at lar$e, even t2ou$2 t2e p2rasin$ o5 t2e standard does not 32oll* 5en(e it in. -2e le$islative 2istor* o5 t2ese #(ts demonstrates a purpose to impose on (ourts a responsibilit* 32i(2 2as not al3a*s been re(o$niHed. /5 (ourse, it is a statute, and not a (ommittee report, 32i(2 3e are interpretin$. But t2e 5air interpretation o5 a statute i5 o5ten 8t2e art o5 proli5eratin$ a purpose,8 Broo4l*n !ational Corp. v. Commissioner, 157 ).+d 450, 451, revealed more b* t2e demonstrable 5or(es t2at produ(ed it t2an b* its pre(ise p2rasin$. -2e adoption in t2ese statutes o5 t2e :udi(iall* (onstru(ted 8substantial eviden(e8 test 3as a response to pressures 5or stri(ter and more uni5orm pra(ti(e, not a re5le(tion o5 approval o5 all e6istin$ pra(ti(es. 1a$e 340 U. S. 490 -o 5ind t2e (2an$e so elusive t2at it (annot be pre(isel* de5ined does not mean it ma* be i$nored. ?e s2ould 5ail in our dut* to e55e(tuate t2e 3ill o5 Con$ress i5 3e denied re(o$nition to e6pressed Con$ressional disapproval o5 t2e 5inalit* a((orded to Labor Board 5indin$s b* some de(isions o5 t2is and lo3er (ourts, or even o5 t2e atmosp2ere 32i(2 ma* 2ave 5avored t2ose de(isions. ?e (on(lude, t2ere5ore, t2at t2e #dministrative 1ro(edure #(t and t2e -a5t&0artle* #(t dire(t t2at (ourts must no3 assume more responsibilit* 5or t2e reasonableness and 5airness o5 Labor Board de(isions t2an some (ourts 2ave s2o3n in t2e past. "evie3in$ (ourts must be in5luen(ed b* a 5eelin$ t2at t2e* are not to abdi(ate t2e (onventional :udi(ial 5un(tion. Con$ress 2as imposed on t2em responsibilit* 5or assurin$ t2at t2e Board 4eeps 3it2in reasonable $rounds. -2at responsibilit* is not less real be(ause it is limited to en5or(in$ t2e re<uirement t2at eviden(e appear substantial 32en vie3ed, on t2e re(ord as a 32ole, b* (ourts invested 3it2 t2e aut2orit* and en:o*in$ t2e presti$e o5 t2e Courts o5 #ppeals. -2e Board7s 5indin$s are entitled to respe(t, but t2e* must nonet2eless be set aside 32en t2e re(ord be5ore a Court o5 #ppeals (learl* pre(ludes t2e Board7s de(ision 5rom bein$ :usti5ied b* a 5air estimate o5 t2e 3ort2 o5 t2e testimon* o5 3itnesses or its in5ormed :ud$ment on matters 3it2in its spe(ial (ompeten(e or bot2. )rom t2is, it 5ollo3s t2at ena(tment o5 t2ese statutes does not re<uire ever* Court o5 #ppeals to alter its pra(ti(e. Some && per2aps a ma:orit* && 2ave al3a*s applied t2e attitude re5le(ted in t2is le$islation. -o e6plore 32et2er a parti(ular (ourt s2ould or s2ould not alter its pra(ti(e 3ould onl* divert attention 5rom t2e appli(ation o5 t2e

standard no3 pres(ribed to a 5utile in<uir* into t2e nature o5 t2e test 5ormerl* used b* a parti(ular (ourt. /ur po3er to revie3 t2e (orre(tness o5 appli(ation o5 t2e present standard ou$2t seldom to be (alled into a(tion. 1a$e 340 U. S. 491 ?2et2er, on t2e re(ord as a 32ole, t2ere is substantial eviden(e to support a$en(* 5indin$s is a <uestion 32i(2 Con$ress 2as pla(ed in t2e 4eepin$ o5 t2e Courts o5 #ppeals. -2is Court 3ill intervene onl* in 32at ou$2t to be t2e rare instan(e 32en t2e standard appears to 2ave been misappre2ended or $rossl* misapplied. .. /ur disa$reement 3it2 t2e vie3 o5 t2e (ourt belo3 t2at t2e s(ope o5 revie3 o5 Labor Board de(isions is unaltered b* re(ent le$islation does not, o5 itsel5, as 3e 2ave noted, re<uire reversal o5 its de(ision. -2e (ourt ma* 2ave applied a standard o5 revie3 32i(2 satis5ies t2e present Con$ressional re<uirement. -2e de(ision o5 t2e Court o5 #ppeals is assailed on t3o $rounds. .t is said (1 t2at t2e (ourt erred in 2oldin$ t2at it 3as barred 5rom ta4in$ into a((ount t2e report o5 t2e e6aminer on <uestions o5 5a(t inso5ar as t2at report 3as re:e(ted b* t2e Board, and (+ t2at t2e Board7s order 3as not supported b* substantial eviden(e on t2e re(ord, (onsidered as a 32ole, even apart 5rom t2e validit* o5 t2e (ourt7s re5usal to (onsider t2e re:e(ted portions o5 t2e e6aminer7s report. -2e latter (ontention is easil* met. .t is true t2at t3o o5 t2e earlier de(isions o5 t2e (ourt belo3 3ere amon$ t2ose disapproved b* Con$ress. B)ootnote +3C But t2is disapproval, 3e 2ave seen, ma* 3ell 2ave been (aused b* unintended intimations o5 :udi(ial p2rasin$. #nd, in an* event, it is (lear 5rom t2e (ourt7s opinion in t2is (ase t2at it, in 5a(t, did (onsider t2e 8re(ord as a 32ole,8 and did not deem itsel5 merel* t2e :udi(ial e(2o o5 t2e Board7s (on(lusion. -2e testimon* o5 t2e (ompan*7s 3itnesses 3as in(onsistent, and t2ere 3as (lear eviden(e t2at t2e (omplainin$ 1a$e 340 U. S. 49+ emplo*ee 2ad been dis(2ar$ed b* an o55i(er 32o 3as at one time in5luen(ed a$ainst 2im be(ause o5 2is appearan(e at t2e Board 2earin$. /n su(2 a re(ord, 3e (ould not sa* t2at it 3ould be error to $rant en5or(ement. -2e 5irst (ontention, 2o3ever, raises serious <uestions, to 32i(2 3e no3 turn. ... -2e Court o5 #ppeals deemed itsel5 bound b* t2e Board7s re:e(tion o5 t2e e6aminer7s 5indin$s be(ause t2e (ourt (onsidered t2ese 5indin$s not 8as unassailable as a master7s.8 B)ootnote +4C 179 ).+d at 75+. -2e* are not. Se(tion 10(( o5 t2e Labor =ana$ement "elations #(t provides t2at. 8.5 upon t2e preponderan(e o5 t2e testimon* ta4en, t2e Board s2all be o5 t2e opinion t2at an* person named in t2e (omplaint 2as en$a$ed in or is en$a$in$ in an* su(2 un5air labor pra(ti(e, t2en t2e Board s2all state its 5indin$s o5 5a(t. . . .8

%1 Stat. 147, +9 U.S.C.(Supp. ... 9 1%0(( . -2e responsibilit* 5or de(ision t2us pla(ed on t2e Board is 32oll* in(onsistent 3it2 t2e notion t2at it 2as po3er to reverse an e6aminer7s 5indin$s onl* 32en t2e* are 8(learl* erroneous.8 Su(2 a limitation 3ould ma4e so drasti( a departure 5rom prior administrative pra(ti(e t2at e6pli(itness 3ould be re<uired. -2e Court o5 #ppeals (on(luded 5rom t2is premise 8t2at, alt2ou$2 t2e Board 3ould be 3ron$ in totall* disre$ardin$ 2is 5indin$s, it is pra(ti(all* impossible 5or a 1a$e 340 U. S. 493 (ourt, upon revie3 o5 t2ose 5indin$s 32i(2 t2e Board itsel5 substitutes, to (onsider t2e Board7s reversal as a 5a(tor in t2e (ourt7s o3n de(ision. -2is 3e sa* be(ause 3e (annot 5ind an* middle $round bet3een doin$ t2at and treatin$ su(2 a reversal as error, 32enever it 3ould be su(2, i5 done b* a :ud$e to a master in e<uit*.8 179 ).+d at 753. =u(2 as 3e respe(t t2e lo$i(al a(umen o5 t2e C2ie5 @ud$e o5 t2e Court o5 #ppeals, 3e do not 5ind ourselves pinioned bet3een t2e 2orns o5 2is dilemma. ?e are a3are t2at to $ive t2e e6aminer7s 5indin$s less 5inalit* t2an a master7s, and *et entitle t2em to (onsideration in stri4in$ t2e a((ount, is to introdu(e anot2er and an unrul* 5a(tor into t2e :ud$mati(al pro(ess o5 revie3. But 3e ou$2t not to 5as2ion an e6(lusionar* rule merel* to redu(e t2e number o5 imponderables to be (onsidered b* revie3in$ (ourts. -2e -a5t&0artle* #(t provides t2at 8-2e 5indin$s o5 t2e Board 3it2 respe(t to <uestions o5 5a(t i5 supported b* substantial eviden(e on t2e re(ord (onsidered as a 32ole s2all be (on(lusive.8 %1 Stat. 14>, +9 U.S.C.(Supp. ... 9 1%0(e . Surel* an e6aminer7s report is as mu(2 a part o5 t2e re(ord as t2e (omplaint or t2e testimon*. #((ordin$ to t2e #dministrative 1ro(edure #(t, 8#ll de(isions (in(ludin$ initial, re(ommended, or tentative de(isions s2all be(ome a part o5 t2e re(ord. . . .8 9 >(b , %0 Stat. +4+, 5 U.S.C. 9 1007(b . ?e 5ound t2at t2is #(t7s provision 5or :udi(ial revie3 2as t2e same meanin$ as t2at in t2e -a5t&0artle* #(t. -2e similarit* o5 t2e t3o statutes in lan$ua$e and purpose also re<uires t2at t2e de5inition o5 8re(ord8 5ound in t2e #dministrative 1ro(edure #(t be (onstrued to be appli(able as 3ell to t2e term 8re(ord8 as used in t2e -a5t&0artle* #(t. .t is t2ere5ore di55i(ult to es(ape t2e (on(lusion t2at t2e plain lan$ua$e o5 t2e statutes dire(ts a revie3in$ (ourt to determine t2e substantialit* o5 eviden(e on t2e re(ord in(ludin$ t2e e6aminer7s report. -2e (on(lusion 1a$e 340 U. S. 494 is (on5irmed b* t2e indi(ations in t2e le$islative 2istor* t2at en2an(ement o5 t2e status and 5un(tion o5 t2e trial e6aminer 3as one o5 t2e important purposes o5 t2e movement 5or administrative re5orm.

-2is aim 3as set 5ort2 b* t2e #ttorne* General7s Committee on #dministrative 1ro(edure; 8.n $eneral, t2e relations2ip upon appeal bet3een t2e 2earin$ (ommissioner and t2e a$en(* ou$2t, to a (onsiderable e6tent, to be t2at o5 trial (ourt to appellate (ourt. Con(lusions, interpretations, la3, and poli(* s2ould, o5 (ourse, be open to 5ull revie3. /n t2e ot2er 2and, on matters 32i(2 t2e 2earin$ (ommissioner, 2avin$ 2eard t2e eviden(e and seen t2e 3itnesses, is best <uali5ied to de(ide, t2e a$en(* s2ould be relu(tant to disturb 2is 5indin$s unless error is (learl* s2o3n. B)ootnote +5C8 #pparentl* it 3as t2e Committee7s opinion t2at t2ese re(ommendations s2ould not be obli$ator*. )or t2e bill 32i(2 a((ompanied t2e )inal "eport re<uired onl* t2at 2earin$ o55i(ers ma4e an initial de(ision 32i(2 3ould be(ome 5inal in t2e absen(e o5 5urt2er a$en(* a(tion, and t2at a$en(ies 32i(2 di55ered on t2e 5a(ts 5rom t2eir e6aminers $ive reasons and re(ord (itations supportin$ t2eir (on(lusion. B)ootnote +%C -2is proposal 3as 5urt2er moderated b* t2e #dministrative 1ro(edure #(t. .t permits a$en(ies to use e6aminers to re(ord testimon*, but not to evaluate it, and (ontains t2e rat2er obs(ure provision t2at an a$en(* 32i(2 revie3s an e6aminer7s report 2as 8all t2e po3ers 32i(2 it 3ould 2ave in ma4in$ t2e initial de(ision.8 B)ootnote +7C 1a$e 340 U. S. 495 But t2is re5usal to ma4e mandator* t2e re(ommendations o5 t2e #ttorne* General7s Committee s2ould not be (onstrued as a repudiation o5 t2em. !ot2in$ in t2e statutes su$$ests t2at t2e Labor Board s2ould not be in5luen(ed b* t2e e6aminer7s opportunit* to observe t2e 3itnesses 2e 2ears and sees and t2e Board does not. !ot2in$ su$$ests t2at revie3in$ (ourts s2ould not $ive to t2e e6aminer7s report su(2 probative 5or(e as it intrinsi(all* (ommands. -o t2e (ontrar*, 9 11 o5 t2e #dministrative 1ro(edure #(t (ontains detailed provisions desi$ned to maintain 2i$2 standards o5 independen(e and (ompeten(e in e6aminers. Se(tion 10(( o5 t2e Labor =ana$ement "elations #(t re<uires t2at e6aminers 8s2all issue . . . a proposed report, to$et2er 3it2 a re(ommended order.8 Bot2 statutes t2us evin(e a purpose to in(rease t2e importan(e o5 t2e role o5 e6aminers in t2e administrative pro(ess. 0i$2 standards o5 publi( administration (ounsel t2at 3e attribute to t2e Labor Board7s e6aminers bot2 due re$ard 5or t2e responsibilit* 32i(2 Con$ress imposes on t2em and t2e (ompeten(e to dis(2ar$e it. B)ootnote +>C 1a$e 340 U. S. 49% -2e (ommittee reports also ma4e it (lear t2at t2e sponsors o5 t2e le$islation t2ou$2t t2e statutes $ave si$ni5i(an(e to t2e 5indin$s o5 e6aminers. -2us, t2e Senate Committee responsible 5or t2e #dministrative 1ro(edure #(t e6plained in its report t2at e6aminers7 de(isions 83ould be o5 (onse<uen(e, 5or e6ample, to t2e e6tent t2at material 5a(ts in an* (ase depend on t2e determination o5 (redibilit* o5 3itnesses as s2o3n b* t2eir demeanor or (ondu(t at t2e 2earin$. B)ootnote +9C8

-2e 0ouse "eport re5le(ts t2e same attitude, B)ootnote 30C and t2e Senate Committee "eport on t2e -a5t&0artle* #(t li4e3ise indi(ates re$ard 5or t2e responsibilit* devolvin$ on t2e e6aminer. B)ootnote 31C ?e do not re<uire t2at t2e e6aminer7s 5indin$s be $iven more 3ei$2t t2an, in reason and in t2e li$2t o5 :udi(ial e6perien(e, t2e* deserve. -2e 8substantial eviden(e8 standard is not modi5ied in an* 3a* 32en t2e Board and its e6aminer disa$ree. ?e intend onl* to re(o$niHe t2at eviden(e supportin$ a (on(lusion ma* be less substantial 32en an impartial, e6perien(ed e6aminer 32o 2as observed t2e 3itnesses and lived 3it2 t2e (ase 2as dra3n (on(lusions di55erent 5rom t2e Board7s t2an 32en 2e 2as rea(2ed t2e same (on(lusion. -2e 5indin$s o5 t2e e6aminer are to be (onsidered alon$ 3it2 t2e (onsisten(* and in2erent probabilit* o5 testimon*. -2e si$ni5i(an(e o5 2is report, o5 (ourse, depends lar$el* on t2e importan(e o5 (redibilit* in t2e parti(ular (ase. -o $ive it t2is si$ni5i(an(e does not seem to us materiall* more di55i(ult 1a$e 340 U. S. 497 t2an to 2eed t2e ot2er 5a(tors 32i(2 in sum determine 32et2er eviden(e is 8substantial.8 -2e dire(tion in 32i(2 t2e la3 moves is o5ten a $uide 5or de(ision o5 parti(ular (ases, and 2ere it serves to (on5irm our (on(lusion. 0o3ever 2altin$ its pro$ress, t2e trend in liti$ation is to3ard a rational in<uir* into trut2, in 32i(2 t2e tribunal (onsiders ever*t2in$ 8lo$i(all* probative o5 some matter re<uirin$ to be proved.8 -2a*er, # 1reliminar* -reatise on ,viden(e, 530F )un4 v. United States, +90 U. S. 371. -2is Court 2as re5used to a((ept assumptions o5 5a(t 32i(2 are demonstrabl* 5alse, United States v. 1rovident -rust Co., +91 U. S. +7+, even 32en a$reed to b* t2e parties, S3i5t E Co. v. 0o(4in$ Dalle* ". Co., +43 U. S. +>1. =a(2iner* 5or dis(over* o5 eviden(e 2as been stren$t2enedF t2e boundaries o5 :udi(ial noti(e 2ave been slo3l* but per(eptibl* enlar$ed. .t 3ould reverse t2is pro(ess 5or (ourts to den* e6aminers7 5indin$s t2e probative 5or(e t2e* 3ould 2ave in t2e (ondu(t o5 a55airs outside a (ourtroom. ?e t2ere5ore remand t2e (ause to t2e Court o5 #ppeals. /n re(onsideration o5 t2e re(ord, it s2ould a((ord t2e 5indin$s o5 t2e trial e6aminer t2e relevan(e t2at t2e* reasonabl* (ommand in ans3erin$ t2e (ompre2ensive <uestion 32et2er t2e eviden(e supportin$ t2e Board7s order is substantial. But t2e (ourt need not limit its ree6amination o5 t2e (ase to t2e e55e(t o5 t2at report on its de(ision. ?e leave it 5ree to $rant or den* en5or(ement as it t2in4s t2e prin(iples e6pressed in t2is opinion di(tate. @ud$ment va(ated t2at (ause remanded. =". @US-.C, BL#CA and =". @US-.C, '/UGL#S (on(ur 3it2 parts . and .. o5 t2is opinion, but, as to part ..., a$ree 3it2 t2e opinion o5 t2e (ourt belo3, 179 ).+d 749, 753. B)ootnote 1C

Labor Board v. 1ittsbur$2 Steams2ip Co., 1>0 ).+d 731F a557d, post, p. 340 U. S. 49>. -2e Courts o5 #ppeals o5 5ive (ir(uits 2ave a$reed 3it2 t2e Court o5 #ppeals 5or t2e Se(ond Cir(uit t2at no material (2an$e 3as made in t2e revie3in$ po3er. ,astern Coal Corp. v. Labor Board, 17% ).+d 131, 134&13%F Labor Board v. La Salle Steele Co., 17> ).+d >+9, >33&>34F Labor Board v. =innesota =inin$ E =5$. Co., 179 ).+d 3+3, 3+5&3+%F Labor Board v. Continental /il Co., 179 ).+d 55+, 555F Labor Board v. Boo4er,1>0 ).+d 7+7, 7+9F but see Labor Board v. Caroline =ills, .n(., 1%7 ).+d +1+, +13. B)ootnote +C See t2e testimon* o5 'ean Stason be5ore t2e Sub(ommittee o5 t2e Senate Committee on t2e @udi(iar* in 1941. 0earin$s on S. %74, 77t2 Con$., 1st Sess. 1355&13%0. B)ootnote 3C See, 5or e6ample, t2e remar4s o5 Laird Bell, t2en C2airman o5 t2e Committee on #dministrative La3 o5 t2e C2i(a$o Bar #sso(iation, 3ritin$ in 1940 in t2e #meri(an Bar #sso(iation @ournal. +% #.B.#.@. 55+. B)ootnote 4C See Gall, -2e Current Labor 1roblem; -2e Die3 o5 .ndustr*, +7 .o3a L."ev. 3>1, 3>+. B)ootnote 5C -2is (2ar$e 3as made b* t2e ma:orit* o5 t2e Spe(ial Committee o5 t2e 0ouse appointed in 1939 to investi$ate t2e !ational Labor "elations Board. 0."."ep. !o. 190+, 7%t2 Con$., 3d Sess. 7%. B)ootnote %C 1ro5essor Gell2orn and =r. Lin5ield rea(2ed t2e (on(lusion in 1939, a5ter an e6tended investi$ation, t2at 8t2e denun(iations 5ind no support in 5a(t.8 Gell2orn and Lin5ield, 1oliti(s and Labor "elations, 39 Col.L."ev. 339, 394. See also =illis and Bro3n, )rom t2e ?a$ner #(t to -a5t&0artle*, %%&75. B)ootnote 7C ?ilson E Co. v. Labor Board, 1+% ).+d 114, 117. B)ootnote >C .n Labor Board v. Standard /il Co., 13> ).+d >>5, >>7, @ud$e Learned 0and said, 8?e understand t2e la3 to be t2at t2e de(ision o5 t2e Board upon t2at issue is, 5or all pra(ti(al purposes, not open to us at allF (ertainl* not a5ter 3e 2ave on(e de(ided t2at t2ere 3as 7substantial7 eviden(e t2at t2e 7disestablis2ed7 union 3as immediatel* pre(eded b* a period durin$ 32i(2 t2ere 3as a 7dominated7 union. . . .8 8B?Ce re(o$niHe 2o3 momentous ma* be su(2 an abdi(ation o5 an* po3er o5 revie3. . . .8

B)ootnote 9C >% Con$."e(. 1394+&13943, reprinted as 0.".'o(. !o. 9>%, 7%t2 Con$., 3d Sess. B)ootnote 10C S. 915, 0.". %3+4, 7%t2 Con$., 1st Sess., 9 5(a . B)ootnote 11C )inal "eport, 9+. B)ootnote 1+C "e5errin$ to proposals to enlar$e t2e s(ope o5 revie3 to permit in<uir* 32et2er t2e 5indin$s are supported b* t2e 3ei$2t o5 t2e eviden(e, t2e ma:orit* said; 8#ssumin$ t2at su(2 a (2an$e ma* be desirable 3it2 respe(t to spe(ial administrative determinations, t2ere is serious ob:e(tion to its adoption 5or $eneral appli(ation.8 8.n t2e 5irst pla(e, t2ere is t2e <uestion o5 2o3 mu(2 (2an$e, i5 an*, t2e amendment 3ould produ(e. -2e respe(t t2at (ourts 2ave 5or t2e :ud$ments o5 spe(ialiHed tribunals 32i(2 2ave (are5ull* (onsidered t2e problems, and t2e eviden(e, (annot be le$islated a3a*. -2e line bet3een 7substantial eviden(e7 and 73ei$2t o5 eviden(e7 is not easil* dra3n && parti(ularl* 32en t2e (ourt is (on5ined to a 3ritten re(ord, 2as a limited amount o5 time, and 2as no opportunit* 5urt2er to <uestion 3itnesses on testimon* 32i(2 seems 2aH* or leaves some lin$erin$ doubts unans3ered. 7Substantial eviden(e7 ma* 3ell be e<uivalent to t2e 73ei$2t o5 eviden(e7 32en a tribunal in 32i(2 one 2as (on5iden(e and 32i(2 2ad $reater opportunities 5or a((urate determination 2as alread* so de(ided.8 8.n t2e se(ond pla(e, t2e 3isdom o5 a $eneral (2an$e to revie3 o5 t2e 73ei$2t o5 eviden(e7 is <uestionable. .5 t2e (2an$e 3ould re<uire t2e (ourts to determine independentl* 32i(2 3a* t2e eviden(e preponderates, administrative tribunals 3ould be turned into little more t2an media 5or transmission o5 t2e eviden(e to t2e (ourts. .t 3ould destro* t2e values o5 ad:udi(ation o5 5a(t b* e6perts or spe(ialists in t2e 5ield involved. .t 3ould divide t2e responsibilit* 5or administrative ad:udi(ations.8 )inal "eport 91&9+. B)ootnote 13C .d., +10&+11. B)ootnote 14C -2e minorit* enumerated 5our 8e6istin$ de5i(ien(ies8 in :udi(ial revie3. -2ese 3ere (1 8t2e 2ap2aHard, un(ertain, and variable results o5 t2e present s*stem or la(4 o5 s*stem o5 :udi(ial revie3,8 (+ t2e interpretation permittin$ substantialit* to be determined 3it2out ta4in$ into a((ount (on5li(tin$ eviden(e, (3 t2e 5ailure o5 e6istin$ 5ormulas 8to ta4e a((ount o5 di55eren(es bet3een t2e various t*pes o5 5a(t determinations,8 and (4 t2e pra(ti(e o5 determinin$ standards o5 revie3 b* 8(ase&to& (ase pro(edure o5 t2e (ourts.8 -2e* re(ommended t2at,

8Until Con$ress 5inds it pra(ti(able to e6amine into t2e situation o5 parti(ular a$en(ies, it s2ould provide more de5initel* b* $eneral le$islation 5or bot2 t2e availabilit* and s(ope o5 :udi(ial revie3 in order to redu(e un(ertaint* and variabilit*. #s t2e Committee re(o$niHes in its report, t2ere are several prin(ipal sub:e(ts o5 :udi(ial revie3 && in(ludin$ (onstitutional <uestions, statutor* interpretation, pro(edure, and t2e support o5 5indin$s o5 5a(t b* ade<uate eviden(e. -2e last o5 t2ese s2ould obviousl*, 3e t2in4, mean support o5 all 5indin$s o5 5a(t, in(ludin$ in5eren(es and (on(lusions o5 5a(t, upon t2e 32ole re(ord. Su(2 a le$islative provision s2ould, 2o3ever, be <uali5ied b* a dire(tion to t2e (ourts to respe(t t2e e6perien(e, te(2ni(al (ompeten(e, spe(ialiHed 4no3led$e, and dis(retionar* aut2orit* o5 ea(2 a$en(*. ?e 2ave 5ramed su(2 a provision in t2e appendi6 to t2is statement.8 .d., +10&+1+. -2e te6t o5 t2e re(ommended provision is as 5ollo3s; 8(e S(ope o5 revie3. && #s to t2e 5indin$s, (on(lusions, and de(isions in an* (ase, t2e revie3in$ (ourt, re$ardless o5 t2e 5orm o5 t2e revie3 pro(eedin$, s2all (onsider and de(ide, so 5ar as ne(essar* to its de(ision and 32ere raised b* t2e parties, all relevant <uestions o5; (1 (onstitutional ri$2t, po3er, privile$e, or immunit*F (+ t2e statutor* aut2orit* or :urisdi(tion o5 t2e a$en(*F (3 t2e la35ulness and ade<ua(* o5 pro(edureF (4 5indin$s, in5eren(es, or (on(lusions o5 5a(t unsupported, upon t2e 32ole re(ord, b* substantial eviden(eF and (5 administrative a(tion ot2er3ise arbitrar* or (apri(ious.1rovided, 2o3ever, -2at, upon su(2 revie3, due 3ei$2t s2all be a((orded t2e e6perien(e, te(2ni(al (ompeten(e, spe(ialiHed 4no3led$e, and le$islative poli(* o5 t2e a$en(* involved, as 3ell as t2e dis(retionar* aut2orit* (on5erred upon it.8 .d., +4%&+47. B)ootnote 15C %0 Stat. +37, 5 U.S.C. 9 1001 et se<. -2e 5orm 5inall* adopted reads as 5ollo3s; 8Se(. 10. ,6(ept so 5ar as (1 statutes pre(lude :udi(ial revie3 or (+ a$en(* a(tion is b* la3 (ommitted to a$en(* dis(retion. . . .8 8I I I I8 8(e SC/1, /) ",D.,?. && So 5ar as ne(essar* to de(ision, and 32ere presented, t2e revie3in$ (ourt s2all de(ide all relevant <uestions o5 la3, interpret (onstitutional and statutor* provisions, and determine t2e meanin$ or appli(abilit* o5 t2e terms o5 an* a$en(* a(tion. .t s2all (# (ompel a$en(* a(tion unla35ull* 3it22eld or unreasonabl* dela*edF and (B 2old unla35ul and set aside a$en(* a(tion, 5indin$s, and (on(lusions 5ound to be (1 arbitrar*, (apri(ious, an abuse o5 dis(retion, or ot2er3ise not in a((ordan(e 3it2 la3F (+ (ontrar* to (onstitutional ri$2t, po3er, privile$e, or immunit*F (3 in e6(ess o5 statutor* :urisdi(tion, aut2orit*, or limitations, or s2ort o5 statutor* ri$2tF (4 3it2out observan(e o5 pro(edure re<uired b* la3F (5 unsupported b* substantial eviden(e in an* (ase sub:e(t to t2e re<uirements o5

se(tions 7 and > or ot2er3ise revie3ed on t2e re(ord o5 an a$en(* 2earin$ provided b* statuteF or (% un3arranted b* t2e 5a(ts to t2e e6tent t2at t2e 5a(ts are sub:e(t to trial de novo b* t2e revie3in$ (ourt. .n ma4in$ t2e 5ore$oin$ determinations, t2e (ourt s2all revie3 t2e32ole re(ord, or su(2 portions t2ereo5 as ma* be (ited b* an* part*, and due a((ount s2all be ta4en o5 t2e rule o5 pre:udi(ial error.8 %0 Stat. +43&+44, 5 U.S.C. 9 1009(e . (.tali(s ours. .n t2e 5orm in 32i(2 t2e bill 3as ori$inall* presented to Con$ress, (lause (B (5 read, 8unsupported b* (ompetent, material, and substantial eviden(e upon t2e 32ole a$en(* re(ord as revie3ed b* t2e (ourt in an* (ase sub:e(t to t2e re<uirements o5 se(tions 7 and >.8 0.". 1+03, 79t2 Con$., 1st Sess., <uoted in S.'o(. !o. +4>, 79t2 Con$., +d Sess. 155, 1%0. "e5eren(es to (ompeten(* and materialit* o5 eviden(e 3ere deleted, and t2e 5inal senten(e added, b* t2e Senate Committee. S."ep.!o. 75+, 79t2 Con$., 1st Sess. +>F S.'o(.!o. +4>, supra, 39&40, +14. !o reason 3as $iven 5or t2e deletion. B)ootnote 1%C # statement o5 t2e #ttorne* General appended to t2e Senate "eport e6plained t2at t2e bill 8is intended to embod* t2e la3 as de(lared, 5or e6ample, in Consolidated ,dison Co. v. Labor Board, 305 U. S. 197.8 Se(tion 10(e o5 #ppendi6 B to S."ep. !o. 75+, supra,reprinted in S.'o(. !o. +4>, supra, +30. =r. =()arland, t2en C2airman o5 t2e #meri(an Bar #sso(iation Committee on #dministrative La3, testi5ied be5ore t2e 0ouse @udi(iar* Committee to t2e same e55e(t. .d., >5&>%. B)ootnote 17C -2e 5ollo3in$ <uotation 5rom t2e report o5 t2e Senate @udi(iar* Committee indi(ates t2e position o5 t2e sponsors. 8-2e 7substantial eviden(e7 rule set 5ort2 in se(tion 10(e is e6(eedin$l* important. #s a matter o5 lan$ua$e, substantial eviden(e 3ould seem to be an ade<uate e6pression o5 la3. -2e di55i(ult* (omes about in t2e pra(ti(e o5 a$en(ies to rel* upon (and o5 (ourts to ta(itl* approve somet2in$ less && to rel* upon suspi(ion, surmise, impli(ations, or plainl* in(redible eviden(e. .t 3ill be t2e dut* o5 t2e (ourts to determine, in t2e 5inal anal*sis and in t2e e6er(ise o5 t2eir independent :ud$ment, 32et2er, on t2e 32ole re(ord, t2e eviden(e in a $iven instan(e is su55i(ientl* substantial to support a 5indin$, (on(lusion, or ot2er a$en(* a(tion as a matter o5 la3. .n t2e 5irst instan(e, 2o3ever, it 3ill be t2e 5un(tion o5 t2e a$en(* to determine t2e su55i(ien(* o5 t2e eviden(e upon 32i(2 it a(ts && and t2e proper per5orman(e o5 its publi( duties 3ill re<uire it to underta4e t2is in<uir* in a (are5ul and dispassionate manner. S2ould t2ese ob:e(tives o5 t2e bill, as 3orded, 5ail, supplemental le$islation 3ill be re<uired.8 S."ep. !o. 75+, supra, 30&31. -2e 0ouse Committee "eport is to substantiall* t2e same e55e(t. 0."."ep. !o. 19>0, 79t2 Con$., +d Sess. 45. -2e reports are reprinted in S.'o(. !o. +4>, supra, +1%&+17, +79.

See also t2e response o5 Senator =(Carran in debate, to t2e e55e(t t2at t2e bill (2an$ed t2e 8rule8 t2at (ourts 3ere 8po3erless to inter5ere8 32en t2ere 83as no probative eviden(e.8 .d., 3++. #nd see t2e (omment o5 Con$ressman Sprin$er, a member o5 t2e 0ouse @udi(iar* Committee, id., 37%. B)ootnote 1>C %1 Stat. 13%, +9 U.S.C. (Supp. ... 9 141 et se<. B)ootnote 19C 0.". 30+0, >0t2 Con$., 1st Sess., 9 10(e , reprinted in 1 Le$islative 0istor* o5 t2e Labor =ana$ement "elations #(t 1947, p. 71. B)ootnote +0C -2e 2istor* o5 t2e evolution o5 t2e Senate provision 3as $iven b* Senator =orse. 93 Con$."e(. 510>, reprinted in + Le$islative 0istor* 1504&1505. -2e prints 3ere not approved b* t2e Committee. B)ootnote +1C S."ep. !o. 105, >0t2 Con$., 1st Sess. +%&+7, reprinted in 1 Le$islative 0istor* 43+& 433. -2e Committee did not e6plain 32at t2e ambi$uit* mi$2t be, and it is to be noted t2at t2e p2rase it itali(iHed is indistin$uis2able in (ontent 5rom t2e re<uirement o5 9 10(e o5 t2e #dministrative 1ro(edure #(t t2at 8t2e (ourt s2all revie3 t2e 32ole re(ord or su(2 portions t2ereo5 as ma* be (ited b* an* part*. . . .8 Senator -a5t $ave t2is e6planation to t2e Senate o5 t2e meanin$ o5 t2e se(tion; 8.n t2e 5irst pla(e, t2e eviden(e must be substantialF in t2e se(ond pla(e, it must still loo4 substantial 32en vie3ed in t2e li$2t o5 t2e entire re(ord. -2at does not $o so 5ar as sa*in$ t2at a de(ision (an be reversed on t2e 3ei$2t o5 t2e eviden(e. .t does not $o <uite so 5ar as t2e po3er $iven to a (ir(uit (ourt o5 appeals to revie3 a distri(t (ourt de(ision, but it $oes a $reat deal 5urt2er t2an t2e present la3, and $ives t2e (ourt $reater opportunit* to reverse an obviousl* un:ust de(ision on t2e part o5 t2e !ational Labor "elations Board.8 93 Con$."e(. 3>39, reprinted in + Le$islative 0istor* 1014. B)ootnote ++C 0."."ep. !o. 510, >0t2 Con$., 1st Sess. 5%, reprinted in 1 Le$islative 0istor* 5%0. .nLabor Board v. !evada Consolidated Copper Corp., 31% U. S. 105, 31% U. S. 107, 3e reversed a :ud$ment re5usin$ to en5or(e a Board order be(ause, 8upon an e6amination o5 t2e re(ord, 3e (annot sa* t2at t2e 5indin$s o5 5a(t o5 t2e Board are 3it2out support in t2e eviden(e.8 -2e su55i(ien(* o5 eviden(e to support 5indin$s o5 5a(t is not involved in t2e t2ree ot2er de(isions o5 t2is Court to 32i(2 re5eren(e 3as made. Labor Board v. 0earst 1ubli(ations, .n(., 3++ U. S. 111F "epubli( #viation Corp. v. Labor Board andLabor Board v. Le -ourneau Co., 3+4 U. S. 793. -2e lan$ua$e used b* t2e Court o55ers a probable e6planation 5or in(ludin$ t3o o5 t2e de(isions o5 Courts o5 #ppeals. .n?ilson E Co. v. Labor Board, 1+% ).+d 114, 117, t2e Court o5 #ppeals 5or t2e Sevent2 Cir(uit sustained a 5indin$ t2at t2e emplo*er

dominated a (ompan* union a5ter statin$ t2at it 2ad 8re(o$niHed (or tried to t2at 5indin$s must be sustained, even 32en t2e* are (ontrar* to t2e $reat 3ei$2t o5 t2e eviden(e, and 3e 2ave i$nored, or at least endeavored to i$nore, t2e s2o(4in$ in:usti(es 32i(2 su(2 5indin$s, opposed to t2e over32elmin$ 3ei$2t o5 t2e eviden(e, produ(e.8 Labor Board v. Columbia 1rodu(ts Corp., 141 ).+d %>7, %>> is a per (uriam de(ision o5 t2e Court o5 #ppeals 5or t2e Se(ond Cir(uit sustainin$ a 5indin$ o5 dis(riminator* dis(2ar$e. -2e (ourt said o5 t2e Board7s de(ision on a <uestion o5 5a(t, 8-2ou$2 it ma* strain our (redulit*, i5 it does not <uite brea4 it do3n, 3e must a((ept it. . . .8 -2e reason 5or disapproval o5 Labor Board v. Union 1a(i5i( Sta$es, 99 ).+d 153, is not apparent. -2e Court o5 #ppeals 5or t2e !int2 Cir(uit t2ere en5or(ed t2e portion o5 t2e Board7s order dire(tin$ t2e (ompan* to disavo3 a poli(* o5 dis(rimination a$ainst union members on t2e $round t2at t2ere appeared 8to be eviden(e, alt2ou$2 disputed,8 t2at some (ompan* o55i(ials 2ad dis(oura$ed emplo*ees 5rom :oinin$. 99 ).+d at 179. -2e bul4 o5 t2e len$t2* opinion, 2o3ever, is devoted to a dis(ussion o5 t2e 5a(ts to support t2e (ourt7s (on(lusion t2at t2e Board7s 5indin$s o5 dis(riminator* dis(2ar$es s2ould not be sustained. B)ootnote +3C Labor Board v. Standard /il Co., 13> ).+d >>5F Labor Board v. Columbia 1rodu(ts Corp., 141 ).+d %>7. See notes > and J > and S. 4745n++JK++, supra. B)ootnote +4C "ule 53(e (+ , )ed."ules Civ.1ro(., $ives 5inalit* to t2e 5indin$s o5 a master unless t2e* are (learl* erroneous. -2e (ourt7s rulin$ e6(ludin$ 5rom (onsideration disa$reement bet3een t2e Board and t2e e6aminer 3as in apparent (on5li(t 3it2 t2e vie3s o5 t2ree ot2er (ir(uits. Labor Board v. /2io Cal(ium Co., 133 ).+d 7+1, 7+4F #. ,. Stale* =5$. Co. v. Labor Board, 117 ).+d >%>, >7>F ?ilson E Co. v. Labor Board, 1+3 ).+d 411, 41>F (5. .nternational #ss7n o5 =a(2inists v. Labor Board, 71 #pp.'.C. 175, 1>0, 110 ).+d +9, 34( C.#.'.C.Cir. . B)ootnote +5C )inal "eport, 51. B)ootnote +%C 99 30>(1 and 309(+ o5 t2e proposed bill, <uoted in )inal "eport, +00, +01. B)ootnote +7C 9 >(a , %0 Stat. +4+, 5 U.S.C. 9 1007(a . -2e <uoted provision did not appear in t2e bill in t2e 5orm in 32i(2 it 3as introdu(ed into t2e Senate. S. 7, 79t2 Con$., 1st Sess., 9 7. .t 3as added b* t2e Senate @udi(iar* Committee. -2e Committee publis2ed its reasons 5or modi5*in$ t2e earlier dra5t, but $ave no e6planation 5or t2is parti(ular (2an$e. SeeS.'o(. !o. +4>, supra, 3+&33. .t is li4el* t2at t2e senten(e 3as intended to embod* a (lause in t2e dra5t prepared b* t2e #ttorne* General7s

Committee 32i(2 provided t2at, on revie3 o5 a (ase de(ided initiall* b* an e6aminer, an a$en(* s2ould 2ave :urisdi(tion to remand or to 8a55irm, reverse, modi5*, or set aside in 32ole or in part t2e de(ision o5 t2e 2earin$ (ommissioner, or itsel5 to ma4e an* 5indin$ 32i(2 in its :ud$ment is proper upon t2e re(ord.8 9 309(+ , )inal "eport +01. -2e substan(e o5 t2is re(ommendation 3as in(luded in bills introdu(ed into t2e 0ouse. 0.". 1>4, 79t2 Con$., 1st Sess., 9 309(+ , and 0.". 339, 79t2 Con$., 1st Sess., 9 7(( , bot2 <uoted in S.'o(. !o. +4>, supra, 13>, 143. B)ootnote +>C Salaries o5 trial e6aminers ran$e 5rom L7,%00 to L10,750 per *ear. See #ppendi6 to t2e Bud$et o5 t2e United States Government 5or t2e 5is(al *ear endin$ @une 30, 195+, p. 47. B)ootnote +9C S."ep. !o. 75+, supra, +4, reprodu(ed in S.'o(. !o. +4>, supra, +10. B)ootnote 30C 0."."ep. !o. 19>0, 79t2 Con$., +d Sess. 3>&39, reprinted in S.'o(. !o. +4>, supra,+7+&+73. -2e 0ouse "eport added t2at, 8.n a broad sense, t2e a$en(ies7 revie3in$ po3ers are to be (ompared 3it2 t2at o5 (ourts under se(tion 10(e o5 t2e bill.8 -2e lan$ua$e o5 t2e statute o55ers no support 5or t2is statement. B)ootnote 31C S."ep. !o. 105, >0t2 Con$., 1st Sess. 9, <uoted in 1 Le$islative 0istor* o5 t2e Labor =ana$ement "elations #(t 1947, p. 415.